Guarding America: Security Guards and U.S. Critical Infrastructure Protection

Publication Date: November 2004

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Government

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Abstract:

The Bush Administration's 2003 National Strategy for the Physical Protection of Critical Infrastructures and Key Assets indicates that security guards are "an important source of protection for critical facilities." In 2003, approximately one million security guards (including airport screeners) were employed in the United States. Of these guards, analysis indicates that up to 5% protected what have been defined as "critical" infrastructure and assets.

The effectiveness of critical infrastructure guards in countering a terrorist attack depends on the number of guards on duty, their qualifications, pay and training. Security guard employment may have increased in certain critical infrastructure sectors since September 11, 2001, although overall employment of U.S. security guards has declined in the last five years. Contract guard salaries averaged $19,400 per year in 2003, less than half of the average salary for police and well below the average U.S. salary for all occupations. There are no U.S. federal requirements for training of critical infrastructure guards other than airport screeners and nuclear guards. Twenty-two states do require basic training for licensed security guards, but few specifically require counter-terrorism training. State regulations regarding criminal background checks for security guards vary. Sixteen states have no background check regulations.

The federal government's role in protecting U.S. critical infrastructure has been a concern of Congress since 9/11. Part of this concern involves the possible imposition of federal security requirements, including guard requirements, on infrastructure which is largely private. In the 108th Congress, a number of bills were introduced that would facilitate employer access to FBI criminal records to conduct background checks of security guard employees. One bill (H.R. 4022) would require private security guard companies to perform criminal background checks, and would prohibit the hiring of guards who failed them. Another bill would direct the Department of Homeland Security (DHS) to conduct security guard emergency training, including training for "acts of terrorism." The DHS currently does not have counter-terrorism training programs specifically for private security guards.

There appears to be no federal or state policy that explicitly addresses critical infrastructure guards as a distinctive group. If homeland security policy evolves towards special treatment of critical infrastructure guards, responsible agencies may face a challenge identifying those guards because of uncertainties in identifying critical assets. Federal counter-terrorism funding for critical infrastructure guards may also present a policy challenge, since 87% of these guards are in the private sector. It is an open question whether private operators of critical infrastructure have hired, trained, and otherwise supported security guards to the degree warranted by the social value of the facilities they protect. As Congress continues its oversight of homeland security, funding for private guards may emerge as a security consideration where public benefits and private resources may not align.

This report will not be updated.